ADAPTATION OF TURKEYS REGIONAL POLICIES TO THE EU …dosya.marmara.edu.tr/avrupa/mjes arsiv/vol 21 2...

MARMARA JOURNAL OF EUROPEAN STUDIES Volume 21 No: 2 2013 165

ADAPTATION OF TURKEY’S REGIONAL POLICIES TO THE EU

ACQUIS: AN EVALUATION THROUGH PROGRESS REPORTS

(1998-2012)

Onur SUNGUR

Hidayet KESKİN

Murat Ali DULUPÇU

Abstract

Regional disparities, as in every country, represent one of the basic problem

areas in Turkey. Although regional policy has always been given importance in the

five-year development plans, regional disparities still remain as a fundamental

problem in Turkey. According to the data of year 2001 (the latest data available at

the provincial level), there is a huge income differences among the provinces as

much as eleven times. This situation is not much different at the regional level. But

recently Turkey has entered a new route with the EU accession process and has

experienced a transformation process in regional development in terms of both

theory and practice. Considering the recent practices in the field of regional

development, it is seen that the concept of ‘old regionalism’ was abandoned and the

‘new regionalism’ approach has begun to be adopted through focusing on the

concepts such as R&D, innovation, clusters and new industrial spaces.

Legal/institutional regulations related to the acquis have accelerated in the field of

regional development when Turkey’s candidacy status was declared after the 1999

Helsinki Summit.

In this study, the transformation in regional development in Turkey within the

process of the EU will be examined. First Turkey’s development plans and regional

policies will be reviewed. Then, acquis of EU regional policy, the structural funds

and documents will be examined critically, particularly referring to Progress

Reports. Finally, efforts with respect to adaptation to acquis will be evaluated and

the route which Turkey will/must follow in case of EU membership will be

discussed.

Keywords: Regional Development, Regional Policy, Development Plans, Turkey,

Progress Reports

Assist.Prof.Dr., Mehmet Akif Ersoy University, Department of Economics, e-mail:

[email protected] Assist.Prof.Dr., Suleyman Demirel University, Department of Economics, e-mail:

[email protected] Prof.Dr., Suleyman Demirel University, Department of Economics, e-mail: [email protected]

166 ADAPTATION OF TURKEY’S REGIONAL POLICIES TO THE EU ACQUIS

TÜRKİYE’NİN BÖLGESEL POLİTİKALARININ

AB MÜKTESEBATINA UYUMU: İLERLEME RAPORLARI

ARACILIĞIYLA BİR DEĞERLENDİRME (1998-2012)

Özet

Bölgesel farklılıklar, her ülkede olduğu gibi, Türkiye’de de en önemli

sorunlardan birini teşkil etmektedir. Beş Yıllık Kalkınma Planları’nda bölgesel

politikalara önem verilmesine rağmen, bölgesel farklılıklar Türkiye’de hala temel

sorun olarak durmaktadır. 2001 yılı verilerine (il düzeyindeki en son veriler) göre,

iller arasında 11 kat fark bulunmaktadır. Bu durum bölgesel düzeyde de pek farklı

değildir. Ancak son zamanlarda Türkiye AB üyeliği ile birlikte yeni bir rotaya

girmiştir ve hem teori hem de uygulama açısından bölgesel gelişmede bir dönüşüm

yaşamaktadır. Bölgesel gelişmedeki son uygulamalar dikkate alındığında, “eski

bölgeselcilik” yaklaşımının terk edildiği ve AR-GE, inovasyon, kümelenmeler ve

yeni endüstriyel alanlar gibi “yeni bölgeselcilik” yaklaşımının benimsendiği

görülmektedir. Türkiye’nin adaylığının açıklandığı 1999 Helsinki Zirvesi

sonrasında bölgesel gelişme konusundaki müktesebata ilişkin yasal/kurumsal

düzenlemeler de hızlanmıştır.

Bu çalışmada, AB sürecinde Türkiye’de bölgesel gelişmedeki dönüşüm

incelenecektir. Öncelikle, Türkiye’nin kalkınma planları ve bölgesel politikaları ele

alınacaktır. Ardından, AB bölgesel politika müktesebatı, yapısal fonlar ve kritik

dokümanlar, özellikle İlerleme Raporları bağlamında incelenecektir. Son olarak,

müktesebata uyum sağlanmasına yönelik çabalar değerlendirilecek ve AB üyeliği

durumunda Türkiye’nin izleyeceği / izlemesi gereken rota tartışılacaktır.

Anahtar Kelimeler: Bölgesel Gelişme, Bölgesel Politika, Kalkınma Planları,

Türkiye, İlerleme Raporları

Introduction

Regional disparities, as in every country, represent one of the basic problem

areas in Turkey. Although regional policy has always been given importance in the

five-year development plans which had been introduced during the beginning of

planned economy period, regional disparities still remain as a fundamental problem

in Turkey. According to the data of year 2001 (the latest available data at the

provincial level), there is a huge income differences among the provinces as much

as eleven times. For example, while the most developed province Kocaeli has

$6165 per capita GDP, Ağrı has $568 per capita GDP. This situation is not much

different at the regional level. But recently Turkey has entered a new route with the

MARMARA JOURNAL OF EUROPEAN STUDIES 167

EU accession process and has experienced a transformation process in regional

development in terms of both theory and practice.

Turkey’s accession process towards the European Union is one of the most

important determinants in Turkish policymaking mentality and one can see the

effects of this process easily on each policy field. While Turkey tries to adopt the

European acquis, it also tries to become closer to the European structures and

practices of regional and local economic policy. And the most vital economic

impact of the EU membership will on regional policy, even though there has been

little concern in public opinion and policy circles about regional policy.

On 3 October 2005, membership negotiations were symbolically opened with

Turkey, which has been an associate member of the EU since 1963 and an official

candidate since 1999. The historical decision on 17 December 2004 by the

European Council was confirmed by the European heads of state and government

on 17 June 2005. On 29 June, the Commission presented its negotiating framework

to Ankara; and following intense negotiations, the EU-25’s foreign ministers

finalized the document on 3 October. Within hours, Turkey accepted the terms (EC,

2005a; 2005b; 2005c). In the June of the following year, the de facto negotiation

process was initiated between the parties.

Legal/institutional regulations related to the acquis have accelerated in the field

of regional development when Turkey’s candidacy status was declared the after the

1999 Helsinki Summit. First of all, in 2002, the new regional classification was

introduced compatible with the EU’s NUTS (Nomenclature of Territorial Units for

Statistics) classification in Turkey by the Law No 2002/4720. Another important

step is the introduction of Regional Development Agencies (RDAs) in Turkey by

the Law No 5449. In addition, Turkey has given the change to benefit the

Instrument for Pre-Accession Assistance (IPA) with the beginning of negotiations

in 3rd

October 2005. However, Turkey cannot use the EU’s Structural Funds which

is the biggest source of regional development yet Turkey is not a full member.

Turkey will take an opportunity to benefit these funds when the membership is

completed and enter an important period. For this reason, the most important impact

of Turkey’s membership of the EU will be seen in the field of regional development

thanks to using Structural Funds.

Prepared in this specific contextual atmosphere, this article aims at scrutinizing

the nature of the EU-driven regional policy changes in Turkey and assessing the

extent to which these changes can be put into practice by Turkey, to be functional in

confronting regional economic disparities in the country. In this context, firstly,

Turkey’s five-year development plans and regional policies and regional policy

changes in these policies will be reviewed. Then, acquis of EU regional policy and

Turkey’s progress on the adoption of EU’s regional policy will be examined


critically, particularly referring to Progress Reports. In this regard, Turkey’s

Regular Reports (1998-2004) and Progress Reports (2005-2012) and Turkey’s

position on the adoption to the acquis will be evaluated. Finally, efforts with respect

to adaptation to acquis will be evaluated and the route which Turkey will/must

follow in case of EU membership will be discussed.

1. Transformation in Regional Policy: Understanding ‘New Regionalism’

Although there are various classifications regarding evolution of regional

policies, Soja (2009: 259), as a mainstreaming scholar, has classified the evolution

of regional planning and regional development theories in four phases in historical

perspective:

- 1920-1950: early approaches which focused on resource development and

environmental preservation

- 1950-1980: welfare regionalism, which aims at efficient and equitable economic

development at national scale

- After 1980s: highly competitive entrepreneurial regionalism based on neoliberal

ideas

- After 1990s: Contemporary development of a new regionalism as the foundation

for a new approach to regional planning and regional development theory.

The first and second phases of literature on regional development theory and

policy, and tools used for the implementation of those policies assumed regions as

passive, pre-given and pre-defined territories (Amin & Thrift, 1994; Burfisher,

Robinson & Thierfelder, 2004). Considering the recent practices in the field of

regional development, it is seen that the concept of ‘old regionalism’ was

abandoned and the ‘new regionalism’ (Keating, 1998; Lovering, 1999) approach

has begun to be adopted through focusing on the concepts such as R&D,

innovation, clusters and new industrial spaces. This new approach has become

prominent issue in the field of economic geography and has begun to inform and

frame key aspects of regional policy (Webb & Collis, 2000: 862; Tomaney &

Ward, 2000: 472, Hettne, 2005: 543).

Today, as ongoing main trends, the technological development and globalisation

are transforming regions into dynamic, pro-active, entrepreneurial, continuous

spatial network geographies (Amin & Thrift, 1995). This transformation was

mainly driven by economic change, globalization and European integration, and the

transformation -even the ‘end’ (Ohmae, 1995)- of (nation) state. In this process,

regions and localities have emerged as key sites of economic change and can be

seen as local production systems rather than simply the location of economic

activities.


Lovering (1999: 379) identifies two main characteristics of ‘new regionalism’,

which are: (1) the ‘region’ is becoming the ‘crucible’ of economic development, (2)

the ‘region’ should be the prime focus of economic policy. The status gained by the

regional scale makes regions as pro-active and active entities which led to a rise of

a series of principles which would have meaning at the local level, such as

sustainability, social inclusion, human resources development, and of course

governance (Florida, 1995). In this context, the key concepts of ‘new regionalism’

approach can be summarized as (OECD, 2009a: 2; 2009b: 69):

- a focus on endogenous assets (such as infrastructure, education, human capital,

innovation, geographic characteristics), rather than exogenous investments and

transfers

- an emphasis on opportunity rather than on disadvantage

- a collective / negotiated governance approach, involving national, regional and

local government plus other stakeholders, with the central government playing a less

dominant role.

Table 1: The ‘Old’ and ‘New’ Regionalism

‘Old’ Regionalism ‘New’ Regionalism

Government Governance

Coordination Collaboration

Accountability Trust

Centralized Decentralized

Hierarchical Multi-Level

Top-to-bottom approach /

Standardized

Bottom-to-top approach /

Tailor-Made

Elite Projects Inclusive Projects

Administrative Regions Active Regions

Less Developed Regions All Regions

Balancing Regional Disparities Growth

Public Measures Public-Private Partnership

(PPP)

Short Term Long Term (Sustainability)

Source: Dulupçu, 2006: 246.

Among others, the failure of the large scale public investments and the state-led

policies which aimed at developing less prosperous regions have caused to rise of

new regionalism. The older generation of regional policies, generally utilized either

attracting inward investments or the large infrastructure investments to certain

locality as tools to develop a region. Thus one-fits-all method has been accepted

among policy circles. This new regional approach is based on the principle that all

regions have their own growth opportunities and all regions can reach their growth

potentials through inside. In this process, regions should wake up their own local


assets to grow, rather than depending on national transfers and subsidies. In this

approach, knowledge production capacity, innovativeness, well-educated

population, connection to global markets, business-friendly environment and

infrastructure system and well-functioning labour system are seen as a source of

regional growth and competitiveness (OECD, 2009a: 2). And also the strategic

coordination at the regional level is also important for economic growth (Webb &

Collis, 2000: 860).

2. Evolution of Regional Policies in Turkey

As the evolution of its economic development, Turkey displays an

understanding of regional development conceived in terms of a ‘residual’ category

(Dulupçu, 2005). This can be observed in the regional policy of the central

government, where the State Planning Organization (SPO)1 ultimately sees

centrally-led and controlled regional economic development as an activity designed

only for less-developed provinces. This has resulted not only from the nature of the

administrative system or state-centred foundations of the Republic, but also from

the prioritization of national economic problems -like the industrialization of the

1960s or the macroeconomic stability of the 1990s. (Öniş & Webb, 1994; Göksu,

2000; Emek, 2004).

- Turkey’s regional development history can be summarized in three different

periods:

- The first period covers the period from the beginning of the Republic (1923) until

the start of the planned development era. In this period, regional planning approach

was ‘construction’ rather than ‘development’. Regional development had been almost

neglected until the planned era.

- The second period starts with the introduction of the 1st FYDP (Five Year

Development Plan) in 1963. Turkey has been put into practice totally nine FYDPs

since 1963. These plans are prepared by the SPO, which is the central administration

responsible for national and regional planning and regional policy. Most of these

plans could not be implemented effectively. The main reason of this situation is the

absence of any regional administrative structure at the intermediate level between

central government and the local authorities. Similarly, the success of rural

development projects -such as Antalya, Çukurova and Zonguldak regions- has been

limited due to the financial and organizational problems. (Loewendahl-Ertugal, 2005:

26).

- The third period starts basically with the acceleration of the EU integration process

when Turkey’s formal candidacy status is accepted in Helsinki Summit in 1999.

Following this, the EU financial assistance along with acquis has forced the central

thinking towards a local understanding. This is partly confessed in Preliminary

1 Recently retitled as Ministry of Development


National Development Plan-PNDP (DPT, 2003a), 9th Development Plan (DPT,

2007: 57) and Accession Partnership Document (DPT, 2003b).

Turkey has used mainly four tools for regional development policy: regional

plans, priority development areas, provincial development plans, and national

development plans (DPT, 2008: 9). Turkey had regional policies but not regional

development administrations until 2006 because largely of its possible implication

for separatism. Recently, as a reflection of EU membership process, the regional

development plans by the Regional Development Agencies (RDAs) were added to

that list (Dulupçu, Gül & Okçu, 2013: 275-276).

The regional dimension has always been in a central position in the

development efforts of Turkey which can be obviously seen from FYDPs (DPT,

1985; 1990; 1996; 2000a). The planning approach based on regional disparities

took place in all FYDPs (between 1962 and 2001 eight plans were prepared). As it

can be seen in Table 2, from the first plan to the last one, regional disparities have

always been among the main problem to be dealt with. However, one cannot see an

integrated policy approach to regional development throughout the planning periods

on the whole, except for the previous 8th FYDP, which employed, although in a

limited manner, strategic and participatory principles and approaches of planning

(DPT, 1962; 1967; 1972; 1978; 1985; 1990; 1996; 2000a).


Table 2: Regional Policies in Five-Year Development Plans

Plans Principles Approaches and

policies

Targets Instruments

1st D

P (19

62-1

967) -Increasing

influence of economic

development on

the regions -Regional

economic

integration

-Regional planning -Growth poles (e.g.

East Marmara,

Çukurova, Antalya, Zonguldak)

-Balanced

urbanization and

regional public service & income

distribution

- Investment

efficiency

-Financial incentives

- Alternatives measures depending on investment in less

favoured regions

2nd

DP

(19

67-1

972)

-Focusing on population

problems

stemmed from rapid

urbanization

-Regional or/and

provincial planning

-Indirect regional planning

-Balanced inter-regional

development

-Balanced (social equity) distribution

between regions

- Investment efficiency

-Tax reductions

-Financial incentives toward

private investments -Pilot projects

-Keban (Second biggest dam in

Turkey)

3rd D

P (19

72-1

977)

-Alleviation of

regional disparities

-Development of particular less

favoured regions

-Sectoral and

provincial planning

Same as in the

second plan

- Financial incentives

-Industrialization programmes for

less favoured regions

-Inventory of local assets

-Provincial planning -Sectoral planning

-‘Packet projects’ -Priority Provinces for

development

4th D

P (19

77-1

982)

-Mobilization of all resources to

solve regional

problems

-Empowerment of inter-sectoral and

inter-regional

connections

-Development of

geographically less favoured regions

-Regional and

sectoral mutual dependency

-Spatial organization

-Interest rate reductions for investments

-Various financial aids

-To publish necessary measures for various sectors and regions

-‘Packet projects’

-Investments in provinces and regions

-Çukurova Urban Development

project -GAP (DPT-JICA)


5th D

P (19

85-1

989) -To accelerate

development

rationalization of resource using in

less favoured and

sectorally high potential regions

-Direct regional planning, including

studies of regional

effects of projects (proposal of 16

functional regions )

-Regionally balanced

development

depending on social equity

-Scheduling of regional

development tables for

determination of potential resources

-Choosing relevant investments

according to above-mentioned tables

-To provide infrastructures for

industrial projects pre-determined in line with prioritized regions and

relevant sectors

-Financial aids for investments in Priority Provinces for

development

6th D

P (19

90-1

994)

-Integration of

social, administrative,

legal and

financial dimensions for

implementation

-Adaptation of statistical system

in line with the EU and

international

standards

-Planning at regional

and sub-regional

level

-Balanced growth in regions

-Supporting sub-

districts to prevent migration from

villages towards

cities

- Increasing the amount of

available financial resources for

Priority Provinces for development and state support

-Incentives for private sector in

Priority Provinces for development and establishment of

a special fund for this aim -Industrial districts

7th D

P(1

996-

2000

)

-Integration of sectoral and

spatial analysis

-Sectoral specialization of

cities

-City planning -Alleviation of

regional

disparities -Strengthening

competitiveness

-Regional and sub-

regional projects

-Mobilization of regionally embedded

competences

-Sustainable development

-Rationalization of both demographic

change and

migration -To analyse

metropolitan

problems in a separate category

-Policy development

for housing problems

-Regional disparities

- To continue the implementation of Priority Provinces for

development

-Emergency Support Programme to East and Southerneast Anatolia

-GAP

-Legal measures -Housing projects

- Supporting SME’s in Priority

Provinces for development -ZBK, Yeşilırmak Basin,

DOKAP, DAP

8th D

P (20

01-2

005)

-Participatory

planning -Sustainability

-Rationalization

in the use of resources

-Adaptation to

the EU regional development

policies

-Regional planning

from a strategic

perspective -Clustering

-Provincial

Development Plans

-Enhancing

competitiveness -Local

entrepreneurship and

mobilization of local resources

-Regional disparities

-SME’s supports -EU funds

-First comprehensive regional

plans -Human capital investments

Source: DPT, 1962; 1967; 1972; 1978; 1985; 1990; 1996; 2000a; OECD, 1986: 5; 1988: 8.


However the limited availability of public financial resources for regional

development along with non-existence of regional strategic plans -prepared through

a participatory approach and priority determination- and regional programmes

depending on those strategic plans, caused to a limited regional support from the

regional actors. Consequently we have observed poor performance in regional

development which has been directed through centrally designed and implemented

regional development tools.

One can rationalize centrally planned regional development by putting forward

the high degree of disparities among the geographical regions and the provinces in

Turkey. With respect to the geographical regions, the socioeconomic divide

between western and eastern Turkey is at an unacceptable level. According to the

data of year 2001, there is a huge income differences among the provinces as much

as eleven times. This situation is not much different at the regional level. For

example, according to an available per capita GNP index data study for the period

1983-1998, while Turkey has an index value 100, the Marmara Region (the most

prosperous region in the west) has an index value of 156 and for the Eastern

Anatolia Region (the less prosperous region in the east) this figure remains at 41.

The numbers are even worse at the provincial level. For instance, the index value is

168 for the province of Kocaeli, and 24 for Van (DPT, 2003c). To put it in other

words: ‘whereas the eastern half of the country accounts for 37 percent of the

population, its share of GNP is only 22 percent. In contrast, the western part of the

country, with 63 percent of the population accounts for 78 percent of GDP. GDP

per capita ratio is 60 for eastern Turkey and 123 for western Turkey’ (Reeves,

2005: 2).

3. Turkey’s Regionalism: A Brief Evaluation of Progress Reports

3.1 General Framework of EU’s Regional Policy

The 2nd

and 3rd

articles of the constituting Treaty of Rome envisages that ‘to

develop social protection, employment level and economic activities in the

Community through a coherent, harmonized balanced and sustainable manner…to

increase life standard and life quality, and to realize economic and social cohesion’.

In addition to this, articles from 158 to 162 which emphasis ‘economic and social

cohesion’ state the purpose of diminishing disparities among different regions

(including rural areas, less developed regions and islands) in the Community. The

EU realizes the aim of cohesion through the actions of the Structural Funds. In this

regard the Commission evaluates the performance of actions for achieving

economic and social cohesion through a report for every three year, and these

reports also suggest new proposals for the future regional policy actions (Avrupa

Komisyonu Türkiye Temsilciliği, 2000).


In the EU, regional disparities in terms of development level and life standards

have always been regarded as a regional issue that should be dealt with, by member

states. However political and economic cohesion have necessitated a fight against

regional disparities. Although there exists a certain focus on the problem of

‘regional disparities’ in the EU that led to significant progress in alleviating

disparities, the most prosperous 10 regions’ GDP per capita is still three times

higher than that of the least prosperous 10 regions (IRE, 2004). According to the

EU, balancing regional economies is crucial in order to benefit from single market

opportunities and the EMU. In this line Community spent some 213 billion Euros

on Regional policy issues particularly on the least developed regions for the Budget

period 2000-2006 which is nearly equivalent to one third of the total budget

(Avrupa Komisyonu Türkiye Temsilciliği, 2000). For the budget period the

allocation amount to the target regions through different funds will be 347 billion

Euros. After the Common Agricultural Policy (CAP), the regional policy of the EU

is the second largest item of the EU budget.

The 21st chapter in the acquis (in the screening process it is redefined as chapter

22) is called ‘Regional Policy and the Coordination of Structural Instruments’.

Under this chapter the procedures, methods, documents, legislative regulations, and

the framework of Structural and Cohesion Funds are specified. The chapter as well

includes assistance types and methods for new member states and candidates.

Moreover, the eligibility of regions, new assistance types, and new initiatives are

also mentioned in this chapter (Başbakanlık, 2003; EC, 1998-2004).

The acquis under this chapter consists mostly of framework and implementing

regulations, which do not require transposition into national legislation. They define

the rules for drawing up, approving and implementing Structural Funds and

Cohesion Fund actions. These programmes are negotiated and agreed with the

Commission, but implementation is under the responsibility of the Member States.

It is essential that Member States respect Community legislation in general, for

instance in the areas of public procurement, competition and environment, when

selecting and implementing projects, and have the necessary institutional structures

in place to ensure implementation in a sound and cost-effective manner from the

point of view of both management and financial control (Dulupçu & Sungur, 2006;

Brasche, 2001).

As mentioned before, the regional policy is the second largest item of the EU

budget. That means, although there is no compulsory directive or need about the

transfer of the acquis on regional policy and structural instruments to internal

legislation, regional policy will provide the largest financial assistance, and thus

will contribute to national economic growth more than any other chapter of the

acquis.


3.2 Turkey’s Progress on the Adoption to EU’s Regional Policy

One of the perspectives to assess the evolution and development of regional

policies in Turkey is the EU methodology for overall assessment towards the

acquis. This formal process represents itself in two documents: the regular reports

that covered candidacy status and secondly the progress reports which has covered

and will cover negotiation period, namely steps to adapt the acquis. The EU

approach to Turkey in terms of regional policy has always been critical yet regional

issues have been one of the weakest chains of policy design and formation.

However this approaching also indicates the importance of regional policy as a tool

for accessing structural funds which will impose the greatest impact on Turkey and

on its socio-economic development. Interestingly such a great impact has been

minor concern in political circles until recently due to heavily shift to the

Copenhagen criteria, leaving this so-called technical dimension alone. Actually the

issues like the democratization, rule of law and marketization in Turkey have found

strong voice both in Turkey and in Europe. Turkish public circles found these issues

attractive at least in two dimensions. The first is making the EU as an anchor to

reform; the second is the political discourse in which the opposition and ruling

parties can gain competitive advantages through debating each other. On the

European side, the deficits in civil society have played an important role to suppress

full membership in a foreseen period of time.

In this regard a brief evaluation of these reports (between 1998 and 2012) can

serve us to understand regional dimension of the acquis and the Turkey’s position

in regional governance and development. Nonetheless one should bear in mind the

weakness of regional policy in Turkey.


Table 3: Turkey’s Progress on Implementation of EU Regional Policies

Ter

rito

rial

Org

anis

atio

n

Leg

isla

tive

Fra

mew

ork

Inst

itu

tion

al

Fra

mew

ork

Ad

min

istr

ativ

e

Cap

acit

y

Pro

gra

mm

ing

Monit

ori

ng a

nd

Ev

aluat

ion

Fin

anci

al

Man

agem

ent,

Con

tro

l an

d A

ud

it

1998 – – – – – – –

1999 – – – – – – –

2000 NP NP NP NP NP – –

2001 – NP NP – NP NP NP

2002 SP NP NP – NP NP NP

2003 SP NP SP – SP NP NP

2004 NP SP SP – SP SP SP

2005 NP LP LP SP NP NP SP

2006 NP SP NP LP SP GP SP

2007 – SP SP LP GP NP SP

2008 – SP LP LP GP SP SP

2009 – SP SP LP SP LP LP

2010 – SP SP SP SP SP SP

2011 – NP SP SP GP SP SP

2012 – SP SP SP SP SP SP

– There is no such title NP No Progress

LP Limited / Very Weak Progress

SP Progress / Some Progress GP Good Progress


First of all, it can be seen that neither radical nor incremental progress has been

achieved until 2002 for the harmonization of Turkey’s regional policies to EU

regional policy (see Table 3). Although Turkey is an ‘official candidate’ since 1999,

we see that there was no progress between 1998 and 2001 in none of the titles that

discussed in the report, namely territorial organization, legislative framework,

institutional framework, administrative capacity, programming, monitoring and

evaluation, financial management, control and audit. Following 2002, Turkey has

been criticized in the EC Progress Reports that only limited progress has been

achieved at least in one or more areas. For example, there is only progress in 2002,

which is in the area of territorial organisation that is the introduction of the

definition of NUTS system. The favourable statements can be found in 2003

Progress Report, relating to NUTS system (about the establishment of 26 NUTS

Level 2 regions with Law No: 2002/4720). However, there is no progress in this

area (territorial organization) since 2003 apart from NUTS system. Looking closer

to the field of legislative framework and institutional framework, it is mentioned by

the EC Regular Reports that Turkey has made some progress after 2004. In

addition, it is seen that the progress has accelerated in all fields in recent years.

Especially there is a good progress in all areas in 2010 and 2012.

Secondly; Turkey has made progress mostly in the areas of Programming,

Financial Management, Control and Audit, Legislative Framework and Institutional

Framework about the harmonization of the acquis. Regarding territorial

organization, there is no progress except NUTS classification, as mentioned before.

However, there has no evaluation in this area about Turkey’s progress since 2006

because there is no such a title in Progress Reports following 2006. Furthermore,

Turkey has shown little progress in Administrative Capacity. The achievement in

this area has seen as limited by EC. However, the developments about

administrative capacity between 2010 and 2012 are satisfactory as mentioned in

related Progress Reports. The reports can be analyzed in two periods: candidacy

and negotiation periods.

3.2.1 Candidacy Period (1998-2005)

The very first report, namely 1998 Regular Report, basically aims to define

regional disparities in Turkey, referring to less developed regions and West-East

divide. In this report no detailed assessment about Turkey’s progress and

performance on regional policies were given because of the lack of information

from the Turkish authorities. Turkey’s regional disparities are criticized and it is

mentioned that Turkey's development lags well behind the Community average and

it is essential for both sides to implement an effective structural policy (EC, 1998:

50). Obviously the report has no concrete offers for the solution of regional

disparities.


Similar expressions of the 1998 Regular Report can be found in 1999 and 2000

Regular Reports which had stressed that Turkey is experiencing the most acute

regional problems (EC, 1999: 40; 2000: 30). Progress report is informed that

Turkey would have to adapt its central administration in order to address this

priority in allocating significant human and budgetary resources in this area,

improving administrative procedures and establishing operational structures in the

regions. However all these suggestion are known by the central government and

criticisms seem to be polite without any radical policy implications.

In 2000 Progress Report, there is a criticism that there is no significant progress

on regional policies since from the last regular report (EC, 2000: 59). There are lots

of critics and suggestions about territorial organisation, legislative framework,

preparation for programming, administrative capacity. Most important of all,

concerning territorial organization, it is advised that Turkey needs to propose to the

Commission a NUTS classification in accordance with Community rules.

In 2001 Progress Report, the criticism has been worsening. In the report, it is

mentioned that no developments has been reported and no further progress has been

made about legislative framework, institutional structures, programming,

monitoring and evaluation, financial management and control (EC, 2001: 77). In the

report, as an achievement, it is mentioned that the SPO and the State Institute of

Statistics have started to prepare a NUTS classification in accordance with

Community rules.

In 2002, the first major development about the implementation of EU’s regional

policy has been achieved, namely the introduction of NUTS System. This was also

mentioned in the 2002 Regular Report (EC, 2002: 109) and it is signed that this

situation has been represented a first substantial step towards the comparability of

Turkish regional statistics with the statistics from other regions in Europe.

However, it is once again criticized that there is no progress in the fields of

legislative framework, institutional structures, programming, monitoring and

evaluation, financial management and control. Additionally, it is stressed that

Turkey still needs to develop the structures necessary for the organisation and the

implementation of the structural policies.

In 2003 Progress Report, there is some progress regarding territorial

organisation, institutional structures, and programming. The issues highlighted in

the report are that the approval of NUTS classification (with Law No: 2002/4720),

the establishment of new department in the SPO (about pre-accession programmes)

and the preparation of a National Development Plan for 2004-2006 period. It is

stated that no developments are to be reported in the fields of legislative framework,

monitoring and evaluation, financial management and control (EC, 2003: 104-105).


In 2004 Regular Report, it is criticised that very limited developments are made

in the area of regional policy since from the last report. Looking in detail, no

progress about territorial organisation has been done and some progress about

legislative framework, institutional structures (establishment of service unions in

some regions to form a NUTS Level 2 unit), programming (approval of PNDP),

monitoring and evaluation, financial management and control have been achieved.

However, these developments regarded as insufficient and it is noticed that regional

development structures at regional level remain weak in Turkey (EC, 2004: 132). It

is advised that Turkey should establish the bodies and mechanisms needed to

implement the acquis.

On the other hand, the candidacy status also includes a worthwhile financial

dimension Turkey was not supported through the PHARE, ISPA and SAPARD

funds, from which the previous candidate countries benefit (these programmes were

abolished and replaced with IPA). In 2000-2006 period, Turkey was supported by

the EU funds that are aggregated under the headline of ‘Pre-Accession Financial

Assistance for Turkey’. In this period, funds were allocated mainly for capacity

building projects and legal and institutional regulations on the adaptation of the

acquis in membership process. In 2002-2006, a total of 1.3 billion Euros was

allocated to Turkey for total 164 projects (Ministry for EU Affairs, 2012: 7).

3.2.2 Negotiation Period (2005-2012)

On 3 October 2005, membership negotiations were symbolically opened with

Turkey and the effect of this development on the progress in regional policies can

be seen in subsequent progress reports.

In 2005 Progress Report, Turkey is criticized because there is no progress about

territorial organisation and NUTS Level 2 regions do not correspond to any

administrative structures. At the same time, it is criticized that no development is

seen on the legal framework for the establishment of RDAs. Regarding institutional

framework, it is stated that there has been little progress on this area. In the report,

it is also noticed that no progress has made about programming, monitoring and

evaluation (EC, 2005: 101-102).

In 2006 Progress Report, as in 2004 and 2005 reports, Turkey is criticized about

territorial organisation, regarding NUTS system. It is stated that most institutions in

Turkey continue to use the traditional geographical regions as the main reference

(EC, 2006a: 56). Regarding legislative framework, it is stress that there was some

progress in the development of the legislative framework. The report has indicated

that there was positive improvement about Development Agencies. In institutional

framework and administrative capacity areas, it is stated that some progress about

programming, financial management and control have made since from last report.

The report indicates that there is a good progress about monitoring and evaluation,


regarding Monitoring Information System. Overall, it is described that Turkey’s

alignment with the acquis in regional policy and coordination of structural

instruments is modest.

Afterwards 2007 Progress Report, the title of territorial organization is not

included in the progress report. Hence, there is no evaluation on this subject in

subsequent progress reports. With regard legislative framework, it is mentioned that

Turkey made progress, but also it is criticized that the law setting up RDAs has

been challenged by a number of associations and preparations in this area are at an

early stage. Also it is argued that funding for the two Development Agencies

established in Izmir and Adana has been suspended pending the decision of the

Constitutional Court on the legality of the legal basis for Development Agencies.

The other fields that have made progress are institutional framework and financial

management, control and audit. It is stated that there is very weak progress on

administrative capacity and it is criticized that there is no progress about monitoring

and evaluation. In general, Turkey's alignment with the acquis in this chapter is

limited (EC, 2007: 57).

At the end of the year 2007, the second major development has been made by

Turkish Government which is the establishment of Development Agencies with

Law No: 5449 in November. This progress is mentioned in 2008 Progress Report

(EC, 2008: 64). As regards programming, preparing Strategic Coherence

Framework (SCF) is underlined as good progress in this area. It is also stated that

there is some progress in monitoring and evaluation, financial management, control

and audit. However, it is criticized that there is limited progress in institutional

framework and administrative capacity.

In 2009 Progress Report, it is criticized that there is very weak progress in the

following areas: administrative capacity, monitoring and evaluation, financial

management, control and audit. Besides, it is noticed that progress was made in

some areas, namely legislative framework, institutional framework, and

programming. The major developments that were highlighted in the report are;

implementing legislation on support for projects and activities from development

agencies (November 2008) and Turkey’s IPA Framework Agreement (December

2008), and establishment of Development Agencies in all provisional NUTS Level

2 regions (EC, 2009: 67-68).

In 2010 Progress Report (EC, 2010), represent a positive outlook. Similarly in

the 2011 Progress Report, it is stated that progress was made in institutional

framework, administrative capacity, programming, monitoring and evaluation,

financial management, control and audit. It is the only exception that there is no

progress in legislative framework. As regards institutional framework, the

establishment of the High Council of Regional Development and the Regional


Development Committee (RDC), the appointment of Secretaries-General in all 26

DAs and the preparation of regional plans in 24 of 26 NUTS Level 2 regions are

welcomed (EC, 2011: 83-84).

Lastly, in 2012 Progress Report, as in 2010, there is a positive outlook in all

areas. With regard legislative framework, the restructuring the Ministry of

Transport, the Ministry of Environment and Forestry, the Ministry of Industry and

Trade and the Ministry of Labour and Social Security are underlined. Similarly, as

regards institutional framework, the establishment of Ministry of Environment and

Urbanisation and the Ministry of Science, Industry and Technology are noticed. It is

stated that there are also some progress in other areas. However, at the end of the

report, as an overall assessment, it is noticed that ‘preparations in this area are not

very advanced’ (EC, 2012: 70).

Considering the financial dimension of negotiation period, it can be see that

after the full membership negotiations began in October 2005, there has been a

substantial increase in TR-EU financial assistance budget. In the 2007-2013 period

a new era has begun in the relations between EU and Turkey in terms of EU funds.

Figure 1: EU Budget Allocated to Turkey

Source: Ministry for EU Affairs, http://www.ab.gov.tr

In the budget period 2007-2013, the mechanisms of financial assistance of EU

to candidate and potential candidate countries are consolidated into a single

instrument which is called Instrument for Pre-Accession Assistance (IPA). In this

context, the candidate countries will be able to get support from the funds on the

basis of 5 priorities: (I) Cohesion Assistance and Institutional Capacity, (II)

Regional and Trans-boundary Cooperation, (III) Regional Development, (IV)

Improvement of Human Resources, and (V) Rural Development (EC, 2006b: 85).

For the budget period 2007-2013, about 10 Billion Euros has been allocated to

candidate and potential candidate countries under the IPA. Considering the

population and area size, 48.2 percent of this fund (4.8 Billion Euros) is allocated to


Turkey for 2007-2013 (Ministry for EU Affairs, 2012: 7). The distribution of IPA

according to its components is as follows:

Table 4: Turkey’s 2007-2013 EU Fund According to IPA Components

IPA Component Fund

(Million Euro)

I. Transition Assistance and

Institution Building 1.667,5

II. Cross-border Cooperation 20,6

III. Regional Development 1.778,4

IV. Human Resources

Development 474,1

V. Rural Development 854,6

Total 4.795,2

Source: Ministry for EU Affairs, http://www.ab.gov.tr

It is important to mention that the contribution of these funds seems to be has

little impact considering the size of Turkish economy. The fund allocated to Turkey

cannot be considered as sufficient but Turkey is trying to utilize these funds with

maximum effort. For 2007-2013, EU fund provided to Turkey under IPA is €66 per

capita which is €171 for Bosnia & Herzegovina and €378 for Montenegro (Ministry

for EU Affairs, http://www.ab.gov.tr). However, the mechanisms and systems that

these funds are more important; hence it introduces or supports systematic change

at administrative level.

4. Turning Points

In the period of 8th FYDP, Turkey’s accession and adaptation process to the EU

has accelerated. It is expected that accession will have direct impact on Turkish

regional policies. In this regard, in order to increase the efficiency of regional

development in creating value added to both regional and national economies,

designing new tools seems inevitable. Moreover, for Turkey, it is important to adapt

a similar approach in regional development policy like the EU. This will lead to

more effective exploitation of pre-accession financial assistance and eventually

accelerate accession process. Following the Common Agricultural Policy (CAP),

the regional policy of the EU is the second largest item of the EU budget. That

means, although there is no compulsory directive or need about the transfer of the

acquis on regional policy and structural instruments to internal legislation, regional

policy will provide the largest financial assistance, and thus will contribute to

national economic growth more than any other chapter of the acquis.


Figure 2: Milestones in Turkish Regional Policy: the EU Impact

In this context, various critical steps have been taken relating to adaptation to

acquis. First of all, in 2002, the new regional classification was introduced

compatible with the EU’s NUTS classification in Turkey by the Law No

2002/4720. In 2004, as another important step, the PNDP which was prepared by

the SPO submitted to the EU. Another important step is the introduction of RDAs

in Turkey by the Law No 5449. In this chapter, these efforts will be evaluated in

detail.

4.1 Realization of the NUTS System

In the period of 8th FYDP, the EU accession process of Turkey also makes

radical changes in regional development policies and implementation possible.

These changes are: (i) the necessary infrastructure is being created at the central and

local levels in order to prepare for the structural funds that could be used after

membership, and (ii) the environment required for an active and participatory

regional development policy is being prepared (DPT, 2007: 55). In this context a

critical step was taken in the 8th FYDP period and The Nomenclature of Territorial

Units for Statistics (NUTS), which enables the determination of the framework for

regional development policies, the collection of regional statistics and the creation

of a comparable statistical database harmonized with the EU regional statistics

system was realized at three levels in 2002 (Ertugal, 2005: 6; DPT, 2007: 56,

Başbakanlık, 2002). The decision of the Turkish Government (no: 2002/4720)

related to the implementation of NUTS was published in the Official Gazette of the

Republic of Turkey (date: 09.22.2002, no: 24884) and was put into practice.

According to this framework, 12 Nomenclature of Territorial Units (NTU) were

defined as Level-1, 26 NTU were defined as Level-2, and 81 NTU (provinces) were

defined as Level-3. The cabinet also agreed on that the NUTS will be the basis for

regional policy.

1998 1999 2002 2007 2004 2008 2010

Declaration of Turkey’s ‘official

candidacy’

Introduction

of NUTS System

Establishment

of RDAs

Preliminary National

Development Plan

Regional Plans

2012


Figure 3: NUTS Level 2 Regions

Source: DPT

4.2 Learning to Programme: Preliminary National Development Plan

In 1999 Helsinki Summit, Turkey was declared as a candidate country. In

Helsinki Summit, it is decided that ‘Turkey is a candidate State destined to join the

Union on the basis of the same criteria as applied to the other candidate States.

Building on the existing European Strategy, Turkey, like other candidate States,

will benefit from a pre-accession strategy to stimulate and support its reforms.’

(DPT, 2003b: i). Following this decision, the Accession Partnership with Turkey

was adopted and the National Programme for the Adoption of the Acquis (NPAA)

was approved by the Government of Turkey. The EC also requested from Turkey to

prepare a Preliminary National Development Plan (PNDP), as with other candidate

countries. As a result of this, with the coordination of the SPO Under-Secretariat,

the PNDP was prepared. This plan, which is co-financed by EU financial support is

an integrated plan in countrywide. The main difference of this plan from previous

development plans is that this plan has a strong financial aspect and the

responsibilities are clearly defined.

Turkey’s first PNDP aimed to form the basis for the use of the financial

assistance towards economic and social cohesion to be provided by the EU within

the framework of Turkey-EU relations, during the 2004-2006 period. The legal

bases of the pre-accession financial assistance for Turkey are Council Regulation

(EC) No 390/2001 of 26 February 2001 and Council Regulation (EC) No

2500/2001 of 17 December 2001. It is aimed that during the PNDP period, pre-

accession financial assistance shall be used in an effective way and establishment of

the necessary infrastructure shall be initiated for the utilization of structural funds

after accession. For this purpose, four development axes / pillars were determined

in the PNDP. These are (DPT, 2003b: iv):


1. Enhancing the Competitiveness of Enterprises

2. Developing the Human Resources and Increasing the Employment

3. Improvement of Infrastructure Services and Environmental Protection

4. Increasing the Economic Power of Regions, Reducing the Interregional

Development Disparities, and Accelerating Rural Development

The main objective of PNDP was to prepare to the EU funds. Turkey has not

been supported through the PHARE, ISPA and SAPARD funds, from which the

candidate countries benefit. Currently, Turkey is supported by the EU funds that are

aggregated under the headline of ‘Pre-Accession Financial Assistance for Turkey’.

To benefit from the mentioned funds, Turkey prepared the PNDP that has also been

prepared by the other candidate countries, which was pre-requested by the

European Commission (Dulupçu & Sungur, 2006).

4.3 Establishment of Regional Development Agencies

Another turning point in terms of regional development policies is the

establishment of RDAs. On 25 January 2006, as an important step, the legislation

for the formation of RDAs was accepted (Law No: 5449).

In the establishment of RDAs, the NUTS system was based on the establishment

of RDAs and NUTS Level 2 regions were decided to establishment of RDAs. Total

of 26-Development Agencies were established in all provisional NUTS Level 2

regions. Firstly, as of July 2006, with decision of Council of Ministers, No:

2006/10550 Izmir Development Agency (NUTS Level 2 TR31 Region) and

Çukurova Development Agency (NUTS Level 2 TR62 Region) were established

and began functioning. The decisions on the establishment of RDAs were published

in the Official Gazette in 2008 and 2009 and all of them began operations.


Table 5: NUTS Level 2 Regions and Regional Development Agencies

REGION INCLUDED PROVINCES CENTRE

TR31 İzmir İzmir

TR62 Adana, Mersin Adana

TR10 İstanbul İstanbul

TR52 Karaman, Konya Konya

TR83 Amasya, Çorum, Samsun, Tokat Samsun

TRA1 Bayburt, Erzincan, Erzurum Erzurum

TRB2 Bitlis, Hakkâri, Muş, Van Van

TRC1 Adıyaman, Gaziantep, Kilis Gaziantep

TRC2 Diyarbakır, Şanlıurfa Diyarbakır

TRC3 Batman, Mardin, Şırnak, Siirt Mardin

TR21 Edirne, Kırklareli, Tekirdağ Tekirdağ

TR22 Balıkesir, Çanakkale Balıkesir

TR32 Aydın, Denizli, Muğla Denizli

TR33 Afyonkarahisar, Kütahya, Manisa, Uşak Kütahya

TR41 Bilecik, Bursa, Eskişehir Bursa

TR42 Bolu, Düzse, Kocaeli, Sakarya, Yalova Kocaeli

TR51 Ankara Ankara

TR61 Antalya, Burdur, Isparta Isparta

TR63 Hatay, Kahramanmaraş, Osmaniye Hatay

TR71 Aksaray, Kırıkkale, Kırşehir, Nevşehir, Niğde Nevşehir

TR72 Kayseri, Sivas, Yozgat Kayseri

TR81 Bartın, Karabük, Zonguldak Zonguldak

TR82 Çankırı, Kastamonu, Sinop Kastamonu

TR90 Artvin, Giresun, Gümüşhane, Ordu, Rize,

Trabzon

Trabzon

TRA2 Ağrı, Ardahan, Iğdır, Kars Kars

TRB1 Bingöl, Elazığ, Malatya, Tunceli Malatya

Source: DPT.

Turkey benefits from IPA since 2007 and there is a regional development

dimension with total budget of 1.778,4 billion Euros, as seen from Table 4.

However, this budget is not directly related with RDAs. RDA like institutions were


established as ‘service unions’ (the name given by the SPO) with financial

assistances between 2004 and 2006 depending PNDP.

At the beginning, the government and bureaucrats thought and established

RDAs to provide a preparation to Structural Funds. However, they became a kind

of a part of national planning when negotiations blocked. In other words, today,

RDAs became a domestic policy tool instead of European policy. Nonetheless the

newly emerged RDAs have some criticisms and insufficiencies. For example; the

act on the RDAs was approved without sufficient participation of local actors,

particularly the formal partner of the RDAs. Similarly insufficient information was

given to local actors about the PNDP, which has reduced the project-preparing

capacity of localities. Moreover, we can observe the low level of awareness in the

local units of the central government about the PNDP. In addition provinces as

administrative bodies are still affective compared to RDAs. Because central budget

is still distributed according to provincial system through various ministries.

When considering the theory behind the establishment of RDAs, it is possible to

say that RDAs are policy and implementation bodies in accordance with ‘bottom-

up’ approach, as ‘new regionalism’ suggests. Although RDAs are not compulsory,

Turkey has accepted this model as changing in regional development

understanding. However, the determination of the geographical borders of the

RDAs under the NUTS system is somehow mysterious. There is no clear approach

in the determination of the borders of the RDAs. The SPO, most likely, utilized the

findings of previous researches such as functional regions study of the 1980s (DPT,

1982; 2000b: 29; Filiztekin, 2008: 95) and attractive centres of the 2000s (DPT,

2007) instead of employing a bottom-to-up approach.

4.4 Resistence of Centralism

As mentioned above, after the Law No: 5449 was approved, two RDAs (İzmir

and Çukurova) were established and began functioning in 2006. However, CHP2

(opposition party) was filed to the Constitutional Court for cancellation and

suspension of execution of some articles of Law No. 5449. Its ground is shown as

‘Development agencies are neither public institutions nor private companies, but

they are using public resources and there is a serious contradiction to the

Constitution’. In addition Development Agencies is based on classification of

NUTS Level 2 and CHP is argued that such a classification could not be based in

the organization of public institutions because in the Constitution of the Republic,

only 81 provinces are identified as administrative units. And CHP has argued that

classifications which are based on different levels are contrary to the Constitution

(Akdenizli, 2007). The existing Development Agencies have stopped their activities

2 Republican People’s Party


nearly during a year because of the cases which is claimed to the Constitutional

Court and the Council of State. The decision of the Constitutional Court about Law

is ended with positive results so Izmir and Çukurova Development Agencies, which

were established in March 2008, were re-started operations. Then there is no any

legal obstacle in front of the establishment of Development Agencies. As a result of

this, during the years 2008 and 2009, RDAs were established and began operations

in the remaining of 24 regions.

Development agencies is exposured to serious criticism because of this issue

was not explained to the public sufficiently and so public awareness is failed. RDAs

are being implemented in EU during long years and they were asked to put into

practice in Turkey which is a candidate country of EU. But this situation is

perceived as EU’s preparation of Turkey to the state system. In addition, the act on

the RDAs was approved without sufficient participation of local actors, particularly

the formal partners of the RDAs. Similarly insufficient information was given to

local actors about the PNDP, which has reduced the project-preparing capacity of

localities. Moreover, we can observe the low level of awareness in the local units of

the central government about the PNDP.

Conclusion: Quo Vadis?

The 21st Chapter is the most contributing subject of the acquis to the economic

and social development of Turkey in the EU full membership process. This chapter

becomes the basic finance area of pre-full membership period. Therefore, the 21st

Chapter of the acquis determines the vision of not only regional but also national

development. In this context, Turkey’s negotiation process with the EU, by and

large, will profoundly shape the future orientation of regional policy in the country.

Turkey, in order to benefit efficiently from the gains linked to establishing full

adaptation to the acquis, should well comprehend and know the acquis on regional

policy, and well evaluate and interpret the critical points it bears.

The acquis under the 21st chapter has basically two interconnected dimensions:

technical and political. The technical dimension consists of restructuring the SPO

and regional programming. In this regard, the newly established RDAs in Turkey

cannot be the reflection of the regional level as a suitable policy scale, but be that of

mere Europeanization, if radical measures on decentralization are not taken by and

large. It is important to mention that the geographical scale of Turkey enforces the

SPO to create a more decentralized system of governance and economic planning;

but once again, decentralization has been born as a part of centralization. Moreover,

the regions, particularly at the NUTS Level 2, are created for the sake of the

accession without consulting to the locals in the existing provinces or providing

enough public awareness.


To sum up the EU adaptation process has three main implications for the

regional policies of Turkey:

Restructuring and questioning at the regional level

The devolution of the responsibilities of field units of central government

to local administrations and municipalities

Increase and development in local financial capacity and capabilities.

The ongoing regional programmes co-funded by the EU have already proved

that there is a critical lack of regional policymaking capacity at the regional level.

In other words, unprepared regionalization would probably cause under- or mis-

utilization of limited resources. This issue brings us to the political dimension of

chapter 21st. The lack of regional awareness, along with insufficient regional

policymaking incentives, could not accelerate the accession process unless a new

decision-making process is included to the system: devolution. Accountability and

power autonomy should settle within the RDAs and provincial administrations.

Otherwise, regions would be inactive partners of the regional policy, and the

regional programmes would turn into centrally imposed development plans, as they

have always been.


References:

Akdenizli, D., (2007), “Kalkınma Ajansları Neden Gerekli?”, (2 September 2007), Radikal.

Amin, A. & Thrift, N. (1994), Globalization, Institutions and Regional Economic

Development in Europe, Oxford University Press, Oxford.

Amin, A. & Thrift, N., (1995), “Institutional Issues for the European Regions: From Markets

and Plans to Socioeconomics and Powers of Association”, Economy And Society, 24(1),

pp. 41-65.

Avrupa Komisyonu Türkiye Temsilciliği (2000), Avrupa Birliği Bölgesel Politika: Yerli

Kaynakların Ekonomik Gelişme İçin Harekete Geçirilmesi, Ankara.

Başbakanlık, (2002), 2002/4720 Sayılı Bölgesel İstatistiklerin Toplanması, Geliştirilmesi,

Bölgelerin Sosyo-Ekonomik Analizlerinin Yapılması, Bölgesel Politikaların

Çerçevesinin Belirlenmesi ve Avrupa Birliği Bölgesel İstatistik Sistemine Uygun

Karşılaştırılabilir İstatistikî Veri Tabanı Oluşturulması Amacıyla Ülke Çapında İstatistikî

Bölge Birimleri Sınıflandırılmasının Tanımlanmasına ilişkin Karar, (22 September

2002), 24884 Sayılı Resmi Gazete.

Başbakanlık, (2003), Avrupa Birliği Müktesebatının Üstlenilmesine İlişkin Türkiye Ulusal

Programı, (24 July 2003), 25178 Sayılı Resmi Gazete.

Brasche, U., (2001), Avrupa Birliği’nin Bölgesel Politikası ve Türkiye’nin Uyumu, (trans.) by

H. Cansevdi, İktisadi Kalkınma Vakfı Yayınları, İstanbul.

Burfisher, M.E., Robinson, S. & Thierfelder, K. (2004), Regionalism: Old and New, Theory

and Practice, International Food Policy Research Institute, Markets, Trade and

Institutions Division Working Paper No: 65.

DPT (1962), Birinci Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1967), İkinci Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1972), Üçüncü Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1978), Dördüncü Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1982), Türkiye'de Yerleşme Merkezlerinin Kademelenmesi: Ülke Yerleşme Merkezleri

Sistemi, DPT, Ankara.

DPT (1985), Beşinci Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1990), Altıncı Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (1996), Yedinci Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (2000a), Uzun Vadeli Strateji ve Sekizinci Beş Yıllık Kalkınma Planı, DPT, Ankara.

DPT (2000b), Sekizinci Beş Yıllık Kalkınma Planı Bölgesel Gelişme Özel İhtisas

Komisyonu Raporu, DPT, Ankara.

DPT (2003a), Türkiye İçin Katılım Ortaklığı Belgesi, Ankara.

DPT (2003b), Ön Ulusal Kalkınma Planı (2004-2006), Ankara.

DPT (2003c), İller ve Bölgeler İtibarıyla GSYİH’daki Gelişmeler (1987-2000), DPT, Ankara.

DPT (2007), Dokuzuncu Beş Yıllık Kalkınma Planı, DPT, Ankara.


Dulupçu, M.A. & Sungur, O. (2006), “Adaptation Problem of Turkey to the Regional

Policies Within the Process of the EU Membership: Dilemmas and Opportunities”,

International Conference on The Changes and Transformations in the Socio-Economic

and Political Structure of Turkey Within the EU Negotiations, Dumlupınar University,

March 16-18, Kütahya, pp. 297-316.

Dulupçu, M.A., (2005), “Regionalization for Turkey: An Illusion or a Cure?”, European

Urban and Regional Studies, 12(9), pp. 99-115.

Dulupçu, M.A., (2006), “Bölgesel Politikalar Kopyalanabilir mi? Bölgeselleş(tir)me

(Yönetim) Karşısında (Yeni) Bölge(sel)cilik (Yönetişim)”, Bölgesel Kalkınma ve

Yönetişim Sempozyumu, ODTU, September 7-8, Ankara, pp. 233-255.

Dulupçu, M.A., Gül, H. & Okçu, M., (2013), Regional and Local Perspectives in Economic

Development in Turkey, Turkey in the New Millennium: A Critique of Political, Social

and Economic Transformations, Kamalak, İ. & Gül, H. (eds), Lambert Academic

Publishing, pp. 263-311.

Emek, U., (2004), Understanding Structural Reforms in Turkey, Turkey and the EU

Enlargement: Processes of Incorporation, Griffits R.T & Özdemir, D. (eds), Istanbul

Bilgi University Press, Istanbul, pp. 103-128.

Ertugal, E., (2005), “Strategies For Regional Development: Challenges Facing Turkey on the

Road to EU Membership”, Turkish Policy Quarterly, 4(3), pp. 63-86.

European Commission (EC) (1998), Regular Report from the Commission on Turkey’s

Progress Towards Accession, 4 November, Brussels.


Progress Towards Accession, 13 October, Brussels.


Progress Towards Accession, 8 November, Brussels.

European Commission (EC) (2001), Regular Report on Turkey’s Progress Towards

Accession, 13 November, Brussels.


Accession, 6 October, Brussels.


Accession, 8 November, Brussels.


Accession, 9 October, Brussels.

European Commission (EC) (2005a), Turkey 2005 Progress Report, 9 November, Brussels.

European Commission (EC) (2005b), Proposal for a Council Decision-On the Principles,

Priorities and Conditions contained in the Accession Partnership with Turkey, 9

September, Brussels.

European Commission (EC) (2005c), 2005 Enlargement Strategy Paper, 9 September,

Brussels.

European Commission (EC) (2006a), Turkey 2006 Progress Report, 8 November, Brussels.


European Commission (EC) (2006b), Council Regulation No: 1085/2006, Official Journal of

European Union, Date: 31.07.2006

European Commission (EC) (2007), Turkey 2007 Progress Report, 6 November, Brussels.


European Commission (EC) (2009), Turkey 2009 Progress Report, 14 October, Brussels.




Filiztekin, A., (2008), Türkiye’de Bölgesel Farklar ve Politikalar, TÜSİAD Yayınları No:

TÜSİAD-T/2008-09/471, Istanbul.

Florida, R., (1995), “Toward The Learning Region”, Futures, 27, pp. 527-536.

Göksu, S. (2000), Küreselleşme ve Planlama Sonu, Dünya Şehircilik Günü 23. Kolokyumu -

3.Bin Yılda Küreselleşme ve Planlama, Yıldız Teknik University Press, Istanbul.

Hettne, B., (2005), “Beyond the ‘New’ Regionalism”, New Political Economy, 10(4), pp.

543-571.

IRE - Innovating Regions in Europe (IRE), <www.innovating-regions.org>.

Keating, M., (1998), The New Regionalism in Western Europe, Territorial Restructuring and

Political Change, Edward Elgar Publishing, Aldershot.

Loewendahl-Ertugal, E., (2005), “Europeanisation of Regional Policy and Regional

Governance: The Case of Turkey”, European Political Economy Review, 3(1), pp. 18-53.

Lovering, J., (1999), “Theory Led by Policy? The Inadequacies of the ‘New Regionalism’ in

Economic Geography Illustrated from the Case of Wales”, International Journal of

Urban and Regional Research, 23, pp. 379-395.

Ministry for EU Affairs (2012), 2012 Progress Report prepared by Turkey, December.

OECD (1986), Documentation for the Review of Regional Problems and Policies in Turkey,

Directorate for Science, Technology and Industry, England.

OECD (1988), Regional Problems and Policies in Turkey, Paris.

OECD (2009a), Policy Brief, March.

OECD (2009b), How Regions Grow: Trends and Analysis, Paris.

ADAPTATION OF TURKEYS REGIONAL POLICIES TO THE EU …dosya.marmara.edu.tr/avrupa/mjes arsiv/vol 21 2...

Documents

Transcript of ADAPTATION OF TURKEYS REGIONAL POLICIES TO THE EU …dosya.marmara.edu.tr/avrupa/mjes arsiv/vol 21 2...